This is  a quick note and I have not had a chance to look into this.

My impression is that the expression לצאת ולבוא throughout TaNa”KH is always in reference to war.  However, in II Chronicles 1:10, Solomon prays:

עתה חכמה ומדע תן לי ואצאה לפני העם הזה ואבואה כי מי ישפט את עמך הזה הגדול

Where the phrase seems to be referring to judging the people, or perhaps to leadership more generally.